Land Use Plan Update Executive Summary 1996

CITY OFJACKSONVILLE
1996 LAND USE PLAN UPDATE
EXECUTIVE SUMMARY
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Adopted by the City of Jacksonville City Council: January 19,1999
Certified by the Coastal Resources Commission: January 29,1999
Prepared by:
Holland Consulting Planners, Inc.
Wilmington, North Carolina
The preparation of this document was financed in part through a grant provided by the North
Carolina Coastal Management Program, through funds provided by the Coastal Zone
Management Act of 1972, as amended, which is administered by the office of Ocean and
Coastal Resources Management, National Oceanic and Atmospheric Administration.
NV (iC4M

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CITY OFJACKSONVILLE
1996 LAND USE PLAN UPDATE
EXECUTIVE SUMMARY
7075-011
Adopted by the City of Jacksonville City Council: January 19,1999
Certified by the Coastal Resources Commission: January 29,1999
Prepared by:
Holland Consulting Planners, Inc.
Wilmington, North Carolina
The preparation of this document was financed in part through a grant provided by the North
Carolina Coastal Management Program, through funds provided by the Coastal Zone
Management Act of I A as amended, which is administered by the Office of ocean and
Coastal Resources Management, National Oceanic and Atmospheric Administration.

CITY OF JACKSONVILLE, NORTH CAROLINA
1996 LAND USE PLAN
EXECUTIVE SUMMARY
The 1996 Land Use Plan for the City of Jacksonville was prepared in accordance with
requirements of the North Carolina Coastal Area Management Act (CAMA). Specifically, this
executive summary complies with Subchapter 7B, "Land Use Planning Guidelines," Section .0202
"Executive Summary," of the North Carolina Administrative Code, as amended, January 1, 1996.
Subchapter 7B, Section .0202, defines the following intent of executive summaries:
"An executive summary shall be prepared and included as an introduction to the
Land Use Plan, or as a separate document. In either case, it shall be suitable for
distribution throughout the planning area. The executive summary shall contain a
summary of the land use issues which will affect the community during the planning
period, the policies which the local government has selected to address those
issues, and a land classification map. An executive summary is not required for a
Sketch Land Use Plan."
It should be noted that the policy section of the land use plan contained in this executive summary
is the most important part of the document. State and federal agencies will use the local land use
policies in making project consistency, funding, and permit decisions.
SECTION I: ANALYSIS OF EXISTING CONDITIONS
A. POPULATION AND HOUSING
1. Population
In the 1940s, the U.S. Defense Department decided to base the 2nd Marine Division and various
support missions at Camp Lejeune, a few miles east of Jacksonville. Throughout World War II
and afterwards, the population of Jacksonville grew steadily. Today, Camp Lejeune is the largest
Marine Corps Base on the East Coast, covering 173 square miles, and hosting an average annual
base load of 40,000 active military personnel. In 1990, the City of Jacksonville officially annexed
a portion of the population of Camp Lejeune and several civilian areas.
The annexation of a portion of the population at Camp Lejeune has had a significant fiscal impact
upon Jacksonville since many intergovernmental revenue sources are tied directly to population
size. Also, the residents of Camp Lejeune are now able to vote in city elections. However,
because the military base is a U.S. government installation, the City of Jacksonville does not
exercise land use or other regulatory controls or policies over the base.
It should be noted here that, prior to the 1990 annexations, the city's official population did not
include any portion of Camp Lejeune. The previous decennial population increases resulted from
natural increase (net live births), in -migration, and an aggressive annexation program initiated in
the mid-1940s.

Since the establishment of Camp Lejeune in the 1940s, Onslow County's population has also
grown steadily. Jacksonville's percentage of the total county population has fluctuated throughout
the years, with dramatic increase due to the 1990 partial annexation of Camp Lejeune.
With the Camp Lejeune partial annexation, Jacksonville's percentage of Onslow County's
population (50.7%) more than doubled compared to the percentage indicated by the 1990 Census
(20.2%). According to U.S. Census figures, between 1980 and 1990, Onslow County's population
increased from 122,784 to 149,838, a 32.9% increase. This was due in part to the addition of both
active and retired military, along with their dependents, to the Jacksonville area.
Since 1990, the population of Onslow County has decreased from 149,838 in 1990 to 147,912
in 1995, a decrease of 1.3% or 1,926 persons. This loss actually occurred in the present city limits
of Jacksonville, but cannot be recognized due to the number of annexations that occurred
between 1990-1995. It should be noted that since the City of Jacksonville annexed a portion of
Camp Lejeune, government fluctuations on the base can now cause fluctuations in the city
population totals. It should also be noted that the City of Jacksonville now comprises more than
half the population of Onslow County.
2. Military Population
Since Camp Lejeune was opened in the 1940s, it has had a substantial impact on the City of
Jacksonville, affecting both the development of public facilities/services and the local economy.
The military population includes personnel and dependents located on and off the Camp Lejeune
base, as well as retirees and their dependents. In March, 1997, the base had an active military
population of 43,242.
During the eleven -year period between 1985 and 1997, two noteworthy trends can be identified.
First, not only did the total dependents increase from 31,674 to 42,000, an increase of 33%, but
the ratio of dependents per active military person increased from 0.73 to 0.97. This is perhaps
indicative of larger military families. Another trend is the increase in total retired and their
dependents from 33,351 in 1985 to 41,000 in 1997. However, according to base personnel, a
portion of this increase is more likely due to more accurate reporting methods than an actual
increase in retired military and dependents.
3. Housing
In 1990, there were 11,810 housing units in Jacksonville. Of that total, 92% were occupied and
8% were vacant. For comparison purposes, Onslow County had a 1990 total of 47,526 housing
units with 86% occupied and 14% vacant.
Housing on Camp Lejeune is provided for both bachelors and married personnel. There are
27,294 bed spaces for bachelor personnel. This includes 7,598 bed spaces for transients and
change of station personnel. For the married military personnel and their families, there are 4,466
housing units plus a mobile home park with 187 spaces.
4. Summary
The following provides a summary of significant demographic and housing findings.
Jacksonville experienced a population increase from 1980 to 1995 of over 300%
due in large part to annexations during this period.

In November, 1995, a total of 41,110 active military personnel lived in Onslow
County. This is a decrease of over 10% since 1991.
- - The ratio of dependents per active military person increased from .73 to 1.38,
indicative of larger military families.
-- The 25-44 age group comprised over 39% of Jacksonville's population in 1995.
-- Jacksonville's 65+ population makes up 43% of Onslow County's 65+ population.
- In 1995, there were 11,810 total housing units in the City of Jacksonville, with 92%
of those occupied.
-- Twenty-eight percent (28%) of Jacksonville's 1990 housing units were forty or more
years old.
-- There are 4,653 residential units for married personnel and 27,294 bed spaces for
bachelor personnel located at Camp Lejeune.
-- The 1990 residential vacancy rate was only 7.5%.
B. ECONOMY
The economic base of Jacksonville is unusual when compared to most municipalities in coastal
North Carolina due to the presence of Camp Lejeune. Since the establishment of the Camp
Lejeune Marine Base in the 1940's, Jacksonville's economy has been heavily influenced by the
presence of the military and related government services. The city's dependence on the
military/government payroll, while long recognized, was especially evident in the latter part of
1990. Beginning in August, 1990, thousands of area military personnel. were deployed to the
Middle East because of the Persian Gulf/Iraq-Kuwait conflict. The economic impact upon
Jacksonville and Onslow County was felt immediately --especially in the area of retail sales. The
purpose of this section of the Land Use Plan Update is to present a brief analysis of Jacksonville's
existing economic trends. Much of the statistical data which follows relates to all of Onslow
County. However, with the 1990 partial annexation of Camp Lejeune, Jacksonville comprises
slightly more than 50% of the county's population. Because it is the major employment center in
the county, its economic impact is greater than the city's percentage of population may indicate.
1. Employment
The military and federal government civilian groups have historically employed the majority of the
Onslow County work force. Out of 83,033 total people employed in 1995, 46,750 were employed
by the military and federal government.
In 1995, the top five employing groups were the military, retail/wholesale trade, state and local
government, services, and federal civilian employment. These five sectors combined made up
over 90% of the county's total employment. The least significant sector in terms of employment
was farming. In fact, between 1990-1995, farm employment has steadily decreased from 1,389
to 216 which is only 0.3% of the county's total employment.

Jacksonville's employment trends were favorable between 1991 and 1995. The unemployment
rate was under 5% from 1992 to 1995. In addition, the 1995 unemployment rate of 3.8 was 25%
below that experienced in 1991.
2. Income and Earnings
Earnings have been increasing steadily since 1980. In particular, Retail/Wholesale Trade;
Finance, Insurance, and Real Estate; and Services have all steadily increased. Manufacturing and
agriculture have decreased steadily. These Onslow County trends are consistent with national
trends.
However, a 20% loss in construction earnings and a 37% rise in government earnings between
1986 and 1994 are peculiar to Onslow County. Construction is probably just settling back to
normal since a boom in the 1980s. Large government increases are due to the military influences
in Onslow County.
3. Retail Sales
Retail sales have increased steadily between 1980 and 1995 in both Jacksonville and Onslow
County. Jacksonville increased 198% from 222,601,497 in 1980 to 663,167,348 in 1995, while
Onslow County increased 168% from 337,474,970 in 1980 to 906,617,509 in 1995.
Between fiscal years 1989-1990 and 1996-1996, the business groups which experienced the
greatest growth were retail sales, automotive, lumber and building materials, and furniture.
4. Per Capita Personal Income 11
Another measure of local income posture is growth in per capita personal income. In 1995, the
per capita personal income for Onslow County ($18,468) had risen above that of the state as a
whole ($17,447)
5. Tourism
Income from tourism has grown in recent years and had a substantial impact in the county's
economy. Between 1985 and 1995, tourism income increased by over 45 million dollars
representing a 110 percent increase. The largest increase occurred in 1987 when tourism income
increased by 28 percent from 1985.
6. Local Government Revenue
Local government revenues, most notably from property taxes, also can be indicative of local
economic trends. The total valuation of property increased by 745,842,899 in the 15-year period
between 1981 and 1996 for a 216 percent increase.
4

7. Summary
The following provides a summary of significant economic data for Jacksonville and Onslow
County.
- Jacksonville had a September, 1996, unemployment rate of 4.2%, which was
slightly higher than the rate for North Carolina.
-- Government provides the largest percentage of civilian jobs in Onslow County with
25%, while accounting for 40% of total earnings in the county.
Retail sales have grown steadily in Jacksonville and Onslow County since 1980.
However, during a military deployment, retail sales tend to decline.
-- In 1995, per capita income in Onslow County was above that of the state for the
first time.
Tourism dollars have more than doubled in Onslow County in the past ten years.
Camp Lejeune and New River Marine Corps Air Station have had tremendous
positive economic impact on the Jacksonville area. Without these two military
installations, the area's economic spectrum would be entirely different.
C. EXISTING LAND USE
There are 9,659 total acres within the City of Jacksonville and an additional 7,518 acres included
within the city's extraterritorial jurisdiction. The city's acreage total includes approximately 2,800
acres of Camp Lejeune that were annexed in 1990. It should be noted that Camp Lejeune is not
under the jurisdictional authority of Jacksonville, as far as development policies or land use
controls are concerned. This discussion of the existing land use trends will only include the portion
of the base that is within the City of Jacksonville. The land use acreages are summarized in
Table 1.
Table 1
1996 Existing Land Use
City of Jacksonville
Category
Residential
Multi -Family
Commercial
Industrial
Institutional
Vacant
Total
Citv of Jacksonville
Acreaae % of Total
3,139.95
32.5%
502.73
5.2%
1,846.28
19.1 %
15.83
0.2%
1,090.36
11.3%
3,063.87
31.7%
9,659.02
100.0%
Source: City of Jacksonville Planning Department.
ETJ
Acreage % of Total
1,099.58 14.6%
437.45 5.8%
349.54 4.6%
36.79 0.4%
265.30 3.5%
5,329.53 70.9%
7,518.19 100.0%
5

The land use patterns in Jacksonville have historically been quite dynamic. Since the 1940s the
government/military presence has attracted more and more new residents.
As.growing numbers of discharged and retire service personnel have opted to remain in the area,
Jacksonville and its immediate environs have gradually expanded with a varied mix of land uses.
However, the City of Jacksonville has, since the 1940's, maintained an aggressive, if not always
popular, annexation policy.
Annexations and Expansion of the Extraterritorial Jurisdiction
Since the land use plan was last updated in 1991, twenty annexations have taken place increasing
the size of the city's jurisdiction by 1.2 square miles.
In the 36 years from 1960 to 1996, Jacksonville's corporate land area grew from 3.56 square miles
to 41.2 square miles, an increase of 1,057%. From the period 1990-1996, Jacksonville's
corporate land area increased from 40.00 square miles to 41.20 square miles, an annual rate of
only 0.5%. The largest increase in the city's corporate area occurred in 1990 when a portion of
Camp Lejeune, Frances Park, Georgetown, and Collins Heights were annexed. The city will
continue its efforts to provide water and sewer facilities to annexed areas with the exception of
Camp Lejeune and adjacent military installations which are self-sufficient in these services.
2. Residential Land Uses
The predominant land use in Jacksonville is for residential purposes. As the economic and
employment center of Onslow County, the city has witnessed the development of a wide variety
of housing types to address a broad range of incomes. However, additional affordable housing
for low -to -moderate income individuals has been identified as a need. Most of the residential
areas have been developed as low -density subdivisions accessible to the major thoroughfares and
centralized services, i.e., water and sewer. The majority of the existing residential development
in Jacksonville is concentrated in two areas. These areas are located north of Marine Boulevard
between the New River and Western Boulevard Extension, and south of Marine Boulevard
between Western Boulevard and Piney Green Road. Since the 1991 Land Use Plan Update,
most of the new residential development has occurred outside the city limits in the subdivisions -
located along Piney Green Road and US 17. Development is expected to continue in these areas
throughout the planning period.
3. Commercial
The commercial land use patterns have changed little in Jacksonville since the last land use plan
update. As noted in the previous CAMA Land Use Plan, the city has a non-traditional Central
Business District (CBD) which is relatively small compared to more extensive commercial areas
located along the major thoroughfares. Since the 1940s, the city has experienced what is
commonly called urban sprawl, taking in more and more "out -lying" areas. As a result of the focus
on commercial accessibility to residential areas, strip commercial development was fostered. The
heaviest concentrations of commercial land uses are still along Highways NC 24, US 17, and
Western Boulevard. These three roads form a wedge -like shape of strip commercial development.
Gum Branch Road and to lesser extent Bell Fork Road, also have significant concentrations of
strip commercialization. In response to strip commercial development, the city has recognized the
need to mitigate its effects on the traffic carrying capacity of its major thoroughfares. The city has
worked to coordinate traffic signals, construct planned crossovers, limit curb cuts, and encourage

joint access. These efforts have helped minimize some of the negative aspects of strip
commercialization throughout the City of Jacksonville.
Since the preparation of the 1991.Land Use Plan, substantial new commercial development has
taken place on US 17 North and the Western Boulevard Extension. A large percentage of this
development has taken place at the intersection of these two thoroughfares. The existing
commercial areas are accessible to the majority of the residential developments. This pattern of
commercial land use will likely continue.
4. Industrial
The City of Jacksonville, has historically had relatively little land used for industrial purposes. The
Jacksonville Industrial Park, although land -locked within the city (located along White and Center
Streets, generally between Bell Fork Road and Country Club Road), is technically outside of the
city's corporate limits, but within its land use jurisdiction. This land area has remained within the
county's jurisdiction as a tax incentive to attract industrial prospects. Currently this area contains
several industries and represents the only concentration of industrial land use in Jacksonville's
jurisdiction. However, this pattern could change in the future, since additional lands have now
been zoned for industrial uses in the vicinity of the new Western Boulevard extension as it
approaches Gum Branch Road. The city has identified the need for an additional industrial park
and the diversification of its industrial base. This would help create less of an economic reliance
on Camp Lejeune employment/personnel.
Institutional Land Use
The major institutional land uses in Jacksonville consist of elementary and secondary schools,
Onslow Memorial Hospital, Coastal Carolina Community College, and County and City
Government facilities. Institutional uses, located primarily for accessibility, are located throughout
Jacksonville, along or near major roadways. There does not appear to be any other uniform
pattern.
Vacant Land
Although Jacksonville has grown rapidly, roughly 49% of the land area within the city and its ETJ
is still vacant. Within the city limits, there are substantial tracts of vacant and likely developable
land within the "wedge" formed by the land area west of Western Boulevard between US 17 north
and NC 24 (Lejeune Boulevard). Large parcels of vacant land also lie east of this "wedge" toward
Northeast Creek. Within the ETJ, nearly all of the land area to the west and north of the current
city limits is currently vacant. However, it should be stressed that due to development constraints
(i.e., wetlands, hydric soils) not all of the city's vacant real estate may be considered suitable for
development. However, having substantial amounts of vacant land, favorable market conditions,
adequate public facilities, and minimal natural constraints, Jacksonville is capable of supporting
additional growth.
7

SECTION II: PROJECTED LAND DEVELOPMENT ANALYSIS
A. DEMOGRAPHIC DATA
Demographic Trends
According to the North Carolina Office of State Planning, Onslow County may expect a 25.5%
increase in its population between 1995-2005. At this rate, the Onslow County population would
reach 185,627 persons by the year 2005. In 1995, the City of Jacksonville's population was equal
to 50.8% of the county's total population. Assuming the city will retain its 1995 percentage of total
county population in 2005, 94,210 persons will reside within the corporate limits of Jacksonville.
This amounts to a numerical increase of 19,141 persons during the ten-year period.
The seasonal population in Jacksonville is not expected to have a significant impact on the city's
services or infrastructure during the planning period. At the time the 1990 U.S. Census was taken,
888 of Jacksonville's 11,810 total housing units were identified as vacant. Approximately 1.5%,
or 13 of these vacant units, were classified for seasonal, recreational, or occasional use. The
impact associated with the occupancy of 13 dwelling units during seasonal periods is extremely
small. However, it should be noted that the city has recognized the importance of promoting
tourism and will work towards doing so during the planning period. Therefore, a slight increase
in the seasonal population over the next ten years may be expected.
2. Housing Trends
Between 1990-1996, the City of Jacksonville issued approximately 250 residential building permits
per year. In September, 1997, there were approximately 3,064 acres of vacant land. However,
due to the presence of 404 wetlands, a portion of this acreage would be considered unsuitable
for development. About 45%, or 1,379 acres appear to be in a residential zoning category. At the
present time, the residential density in Jacksonville is approximately .25.units per acre. If this
density continues, the vacant developable residential land could accommodate approximately
5,516 additional dwelling units. At current growth rates, it would take a minimum of 22 years to
utilize the vacant land.
The majority of the new residential construction over the next five years is expected to occur
outside the Jacksonville City Limits along Piney Green Road and U.S. 17.
3. Commercial Land Use
Significant changes in Jacksonville's commercial land use patterns are not expected to occur
during the planning period. Commercial development is expected to continue along Highways NC
24, U.S. 17, and Western Boulevard. The Jacksonville population may be expected to increase
by approximately 19,000 persons by the year 2005. While it is impossible to convert this
population increase into an accurate forecast of increased commercial acreage, the population
increase is generally indicative of the commercial land use increase which may be expected to
occur. In addition, commercial development is highly reliant on the number of Camp Lejeune
personnel. As mentioned earlier in the Economy portion of Section I of the complete Land Use
Plan, during the Persian Gulf/Iraq-Kuwait conflict, retail sales in Jacksonville suffered significantly
due to the deployment of base personnel. Therefore, any significant changes that might occur
at Camp Lejeune would have a direct impact on the amount of acreage developed for commercial
uses.

' � i
With or without military growth, the need for redevelopment of the city's commercial areas should
continue through the planning period. As the age of commercial structures increases, the need
for revitalization/redevelopment will increase. The city should develop a specific commercial
revitalization plan which will address the commercial area needs/issues, provide specific objectives
and implementing actions, and identify funding sources. It is emphasized that to succeed, this
must be a joint public/private venture. The following issues should confront commercial
development through the planning period:
- Commercial development will continue to be heavily dependent on military personnel.
Commercial revitalization will have a positive impact on the city.
Congestion on Marine (U.S. 17), Lejeune (NC 24), and Western Boulevards will hinder
access to commercial establishments.
- New commercial development is expected to be concentrated on Marine Boulevard (U.S.
17) and Western Boulevard, including the Western Boulevard Extension.
- The city's desire to control strip commercialization and excessive signage.
4. Industrial Land Use
There is limited industrial land use within Jacksonville's planning jurisdiction. In fact, industrial land
use occupies only 0.2% of the corporate area and 0.4% of the city's ETJ. It is anticipated that
active industrial recruitment efforts will result in growth of industrial land use during the planning
period. In addition, additional lands have recently been zoned for industrial uses in the vicinity of
the new Western Boulevard Extension as it approaches Gum Branch Road. The city has
recognized the need for an additional industrial park and will work towards the diversification of
its industrial base.
5. Transportation
Although other transportation improvements have been scheduled, the major transportation issue
confronting Jacksonville is the construction of the U.S. 17 Jacksonville Bypass. The NCDOT
identification numbers for this project are U-2107 and U-2107A. Construction of the bypass has
already been initiated and is expected to continue through the year 2003. The construction of the
Bypass will greatly reduce traffic congestion on U.S. 17 and NC 24 through Jacksonville.
Other transportation issues include:
Limiting additional points of ingress and egress on Marine, Lejeune, and Western
Boulevards.
Implementation of the NCDOT Transportation Improvement Plan.
-- Improve pedestrian access and foster pedestrian -friendly environment.
Coordinate with NCDOT to ensure that city streets are adequately maintained and
upgraded.
�7

6. Public Land Use
The greatest change in public land use expected to take place during the planning period will
occur in Jacksonville Commons. This area consists of approximately 280 acres and is located just
off of the Western Boulevard Extension. A small portion of this acreage has been developed as
a recreational complex which opened in December, 1996. Approximately 80 acres was given to
Onslow County for the construction of an elementary school and a middle school, and ten acres
have recently been cleared to construct four youth softball/baseball fields which opened in the
spring of 1998.
As a result, approximately 95 acres of the Jacksonville Commons area has been developed,
leaving a balance of 185 acres for future development. A master plan for the remaining acreage
has not been prepared. However, a portion of this area will be used for a new high school and
the remaining area may be used for parkland.
7. Redevelopment Issues
The city will continue the preservation and improvement of its existing housing stock through the
administration of Community Development Block Grant (CDBG) funds. As previously mentioned,
there is also a need for commercial redevelopment. As the age of commercial structures
increased and buildings deteriorate, the need for commercial redevelopment will increase.
Although a large majority of the "clean-up" and redevelopment incurred as a result of Hurricane
Fran has already taken place, the City of Jacksonville will continue in its efforts. The specifics of
this type of redevelopment are dealt within the storm hazard mitigation and post -disaster
reconstruction plan. However, Jacksonville will support the reconstruction of any properties
destroyed by natural disaster consistent with applicable City of Jacksonville ordinances.
SECTION III: LAND CLASSIFICATION SYSTEM
The CAMA regulations require the establishment of a specific land classification system to support
the local government's policy statements. This system should reflect developing land use patterns
within a community. The CAMA 15A NCAC 7B regulations state:
"The land classification system provides a framework to be used by
local governments to identify the future use of all lands. The
designation of land classes allows the local government to illustrate
their policy statements as to where and to what density they want
growth to occur, and where they want to conserve natural and
cultural resources by guiding growth."
The 15A NCAC 7H requirements provide for the following seven land classifications: Developed,
Urban Transition, Limited Transition, Community, Rural, Rural with Services, and Conservation.
In applying these classifications, Jacksonville should carefully consider where and when various
types of development should be encouraged. Additionally, where practical, the areas of
environmental concern requiring protection should be identified and mapped. Each applicable
land classification must be represented on a land classification map.
10

The following land classifications will apply in Jacksonville's jurisdiction:
DEVELOPED: Areas included in the developed land classification are currently urban in
character, with no or minimal undeveloped land remaining. Municipal types of services are in
place or are expected to be provided within the next five to ten years. Land uses include
residential, commercial, industrial, and other urban land uses at high or moderate densities.
Residential densities are allowed in excess of an average of three dwelling units per acre, with
- minimum single-family residential lot sizes ranging from 6,000 square feet to 20,000 square feet.
URBAN TRANSITION: Areas included in the urban transition classification are presently being
developed for urban purposes, or will be developed in the next five to ten years. These areas
should eventually require complete urban services within the planning period. The urban transition
areas include mixed land uses such as residential, commercial, institutional, industrial, and other
uses approaching high to moderate densities. Residential densities are allowed in excess of an
average of three dwelling units per acre, with a minimum single-family residential lot size of 10,000
square feet.
RURAL WITH SERVICES: Areas included within the rural with services classification are
developed at low density. Land uses include residential use where limited water services are
provided in order to avert existing or projected health problems. Lot sizes will be large and the
provision of services will not disrupt the primary rural character of the landscape. The provision
of services should not be designed to serve as a catalyst for development.
CONSERVATION: The purpose of the Conservation class is to provide for the effective long-term
management and protection of significant, limited, or irreplaceable areas. Management is needed
i due to the natural, cultural, recreational, scenic, or natural productive values of both local and
more than local concern. The Conservation class is designed to illustrate the natural, productive,
scenic, cultural, and recreational features of the coastal zone which make the region a desirable
place in which to live, work, and visit. As such, the Conservation class should be applied to areas
that because of their unique, productive, limited, cultural, or natural features should be either not
developed at all (preserved), or if developed, done so in an extremely limited and cautious fashion.
The following Areas of Environmental Concern (AEC) are included in the conservation
classification:
Coastal Wetlands: This classification includes all areas of marsh subject to regular or
occasional flooding by tides, including wind tides. However, tidal flooding is understood
not to include hurricane or tropical storm tides. The existence of coastal wetlands must
be determined by the Division of Coastal Management. Development which meets the
minimum use standards of 15A NCAC 7H, the City of Jacksonville zoning ordinance, and
the policies contained in this plan shall be allowed in areas classified as coastal wetlands.
_ Estuarine Shorelines: All areas lying 0-75 feet landward of the mean high water level of
estuarine waters are classified as estuarine shorelines. Because of map size and scale,
these areas cannot be accurately mapped. Precise locations must be determined in the
field. Uses will be allowed within the estuarine shoreline areas that are consistent with the
15A NCAC 7H use standards and the City of Jacksonville zoning ordinance.
11

Public Trust and Estuarine Waters: All public trust and estuarine waters are included in
this classification. All waters in Jacksonville's planning jurisdiction are classified as public
trust areas as described by 15A NCAC 7H.0207, or estuarine waters as described by 15A
NCAC 7H.0206. Uses consistent with 15A NCAC 7H.0207 and .0206 will be allowed. The
city opposes the permanent location of floating structures in estuarine and public trust
waters and in marinas. Except for floating structures and prohibition of signage in public
trust and estuarine waters, the conservation policies are not more restrictive than the use
standards included in 15A NCAC 7H.
The following non -AEC fragile area is also included in the conservation classification:
Natural Heritage Areas: These areas include the hardwood swamps along the New River
and its tributaries.
The land classifications are delineated on Map 13 (the map number references the Land
Classification Map contained in the Land Use Plan). The land classification map allows for the
development of Jacksonville's planning jurisdiction during the next five to ten years.
12

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SECTION IV: POLICY STATEMENTS
Policy statements are extremely important and have a day-to-day impact on individual citizens
within Jacksonville's planning jurisdiction. The statements will have an impact in several areas,
including:
-- CAMA minor and major permitting as required by N.C.G.S. 113A-118 prior
to undertaking any development in any area of environmental concern.
-- Establishment of local planning policy.
- Review of proposed projects requiring state or federal assistance or
approval to determine consistency with local policies.
The Coastal Resources Commission requires all governments to specify stated development
j policies under each one of five broad topics. These topics include:
1
- Resource Protection
- Resource Production and Management
- Economic and Community Development
- Continuing Public Participation
- Storm Hazard Mitigation, Post -Disaster Recovery, and Evacuation Plans
During 1995 and 1996, the NCAC 713 CAMA planning guidelines were revised. The revised
guidelines included new requirements for the development of policy statements. These changes
included the following policy statement additions:
A general vision policy statement describing the type of community
that the local government would like to become within the next ten
years.
- A basic statement as to the community attitude toward resource
protection.
-- Where available, a policy addressing the protection of wetlands
-- identified as being of the highest functional significance on maps
supplied by the Division of Coastal Management.
-- A policy addressing moorings and mooring fields.
- A policy addressing water quality problems and management
measures designed to reduce or eliminate local sources of surface
water quality problems.
-- A statement as to the community attitude toward resource
production and management.
-- A statement as to the community attitude toward economic and
community development.
14

- A policy addressing commitment to state and federal programs,
including housing rehabilitation, community development block
grants, housing for low and moderate income level citizens, water
and sewer installation, and rural water systems.
-- A policy addressing assistance to interstate waterways.
Based on the analysis of existing conditions and trends, suggestions from the citizens residing
within the city's planning jurisdiction, and substantial input and guidance from the City of
Jacksonville Planning Board, the policies in the following sections have been formulated to provide
a guide for regulating development within Jacksonville's planning jurisdiction. Policies which were
considered, but not adopted, are provided in Appendix III of the complete Land Use Plan.
A. VISION STATEMENT
Jacksonville desires to achieve balanced residential, business, and industrial growth while
preserving its natural assets. The military will continue to be an important, highly valued segment
of the Jacksonville community. The city will pursue an annexation policy of expanding the city's
corporate limits when financially feasible. Commercial development along the city's major
thoroughfares and along its urban (downtown) waterfront will be encouraged.
In summary, the City of Jacksonville desires to achieve the following:
Establish additional industrial park areas.
-- Diversify the city's industrial base.
Improve water quality in the New River and improve the aesthetic appearance of
the shoreline.
- Expand the city through financially feasible annexation.
- Increase the city's inventory of affordable housing.
Preserve Areas of Environmental Concern.
- Preserve and protect residential neighborhoods.
-- Control, not eliminate, strip commercialization.
Redevelop the city's downtown area.
B. RESOURCE PROTECTION POLICY STATEMENTS
Community Attitude on Resource Protection
The City of Jacksonville is supportive of resource protection, in particular preservation of
conservation areas as defined by this plan. All 15A NCAC 7H minimum use standards will be
supported, or in some cases exceeded, by the policies contained in this plan. In particular, the
city desires to preserve the New River and the hardwood swamps located along the river and its
tributaries.
Physical Limitations
Areas of Environmental Concern: Please see page III-2 of the complete Land Use Plan for the
city's policies regarding development in Areas of Environmental Concern.
15

Soils: To mitigate septic tank problems and other restrictions on development posed by soil
limitations, the city has adopted the following policies:
POLICIES:
(a) Nearly all of the ETJ areas currently utilize septic tanks and package treatment systems.
Jacksonville will not encourage development in areas with septic tank limitations, but will
support decisions made by the Onslow County Health Department. Also, when and where
feasible, the city will attempt to provide centralized sewer service to existing development
according to current city policies for extensions.
(b) Because of the sensitivity of certain soils near productive water bodies, Jacksonville
believes that density of development and placement of septic tanks in these areas should
be carefully and strictly regulated. Currently, the city does not permit the placement of
septic tanks anywhere within the city limits. In the ETJ, the County Health Department
requires septic tanks to be set back a distance from water bodies. The city supports this
regulation.
(c) In areas with a probability of containing 404 wetlands, an on -site analysis must be
conducted by the U.S. Army Corps of Engineers, Wilmington District Office prior to the
undertaking of development. When the presence of 404 wetlands is confirmed by the
Corps of Engineers, the city will not impose restrictions beyond those required by the
Corps.
IMPLEMENTATION:
(1) Jacksonville will enforce all current regulations of the N.C. State Building Code and North
Carolina Division of Health Services relating to building construction and septic tank
installation/replacement in areas with soils restrictions for septic tank construction.
(2) Jacksonville will coordinate all development activity with appropriate city, county, and state
regulatory personnel, and in particular with the city's Building Inspectors and Onslow
County Sanitarian.
(3) Jacksonville will cooperate with the U.S. Army Corps of Engineers in the regulation/
enforcement of the 404 wetlands permit process. The city understands this may result in
some net wetland loss.
SCHEDULE (1) - (3): Continuing Activities, FY1997-2007.
Flood Hazard Areas
POLICY: The City of Jacksonville desires to minimize the hazards to life, health, public safety, and
development within flood hazard areas.
Ihd»�id�►��r��N7PA
(1) Jacksonville will continue to coordinate all development within the special flood hazard
areas with the city's Inspections Division, North Carolina Division of Coastal Management,
FEMA, and the U.S. Corps of Engineers.
16

(2) Jacksonville will continue to enforce its existing zoning and flood damage prevention
ordinances and follow the storm hazard mitigation plan contained herein.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
Groundwater/Protection of Potable Water Supplies
POLICY. • Jacksonville's policy is to conserve its surficiall groundwater resources.
IMPLEMENTATION:
(1) The City of Jacksonville will conserve its surricial groundwater resources by supporting
CAMA and N.C. Division of Water Quality stormwater runoff regulations, and by
coordinating local development activities involving chemical storage or underground
storage tank installation/abandonment with Onslow County Emergency Management
personnel and the Groundwater Section of the North Carolina Division of Water Quality.
The City of Jacksonville Building Inspections Division will coordinate building inspections
with state and federal regulations governing underground storage tanks, and will endeavor
to advise building permit applicants of those regulations.
(2) Land uses near groundwater sources are regulated by the North Carolina Division of
Water Quality through NCAC Subchapters 2L and 2C. Jacksonville recognizes the
importance of protecting its potable water supplies and, therefore, supports the
enforcement of these regulations.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
(3) The City of Jacksonville supports the preparation of a joint Water Resources Study with
Onslow County and any other interested municipalities in the county.
SCHEDULE (3): Tentative FY1999-2000
Manmade Hazards
POLICIES:
(a) Jacksonville supports regulation of underground storage tanks in order to protect its
groundwater resources.
(b) With the exception of fuel storage tanks used for retail and wholesale sales, Jacksonville
opposes the bulk storage of fuel or other manmade hazardous materials within any areas
not zoned industrial.
(c) The City of Jacksonville opposes the disposal of any toxic wastes, as defined by the U.S.
Environmental Protection Agency's Listing of Hazardous Substances and Priority
Pollutants (developed pursuant to the Clean Water Act of 1977) within its planning
jurisdiction.
1 Groundwaters which are at or just below the surface.
17

(d) Any proposed new development posing the potential of serious detriment to the
environment shall provide assurance of compliance with all applicable state and federal
environmental protection regulations and any other restrictions which may be imposed by
the city at that time. The city deems this to be necessary in order to prevent possible
irreversible damage from either air, water, or ground pollution and to help safeguard the
health of its citizens. Such hazards could possibly result from certain industries or certain
construction practices. The city will insist on adherence to local, state, and federal
requirements.
IMPLEMENTATION:
(1) The City of Jacksonville will rely on the technical requirements and state program approval
_ for underground storage tanks (40 CFR, Parts 280 and 281), and any subsequent state
regulations concerning underground storage tanks adopted during the planning period.
(2) The City of Jacksonville will rely on its zoning ordinance to regulate the storage of toxic
wastes within its planning jurisdiction.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
;J Stormwater Runoff
POLICY.. Jacksonville supports water quality maintenance in order to protect fragile areas
including coastal wetlands and to provide clean water for recreational purposes.
IMPLEMENTATION.
(1) The city will support existing state regulations relating to stormwater runoff resulting from
development (Stormwater Disposal Policy 15 NCAC 2H.001-.1003) through enforcement
of the city's subdivision and zoning ordinances.
(2) The city supports control of agricultural runoff through implementation of U.S. Soil
Conservation Service "Best Management Practices" program.
SCHEDULE (1) -(2): Continuing Activities, FY1997-2007.
(3) The City of Jacksonville will support the development of a comprehensive city-wide
stormwater drainage plan.
(4) The City of Jacksonville will consider revising its zoning and subdivision ordinances to
reduce the areas covered during development by impervious surfaces. This will reduce
stormwater runoff. Changes may include, but not necessarily be limited to:
-- Stabilized but not paved parking lots.
-- Paving with "grass stones" (paving blocks which have open areas to allow passage
of water).
-- Strip paving of streets.
(5) Virtually all of the major watercourses in Jacksonville's jurisdiction have been declared
"Nutrient Sensitive Waters." At the same time, a portion of these waters are also classified
as Primary Nursery Areas. Jacksonville recognizes that the New River system is affected
by a rather large watershed basin. Stormwater runoff mainly from agricultural activities and
18

to a lesser extent urban development could adversely affect the quality of these waters.
The City of Jacksonville will continue to support strict enforcement of existing
sedimentation and pollution control measures. The city will seek to have a comprehensive
stormwater management study prepared, with water quality enforcement being the major
desire.
SCHEDULE (3) - (5): FY1998-2002.
Cultural/Historic Resources
POLICY.- Jacksonville will protect its historic resources as a valuable cultural and economic asset.
IMPLEMENTATION:
(1) Jacksonville shall coordinate all housing code enforcement/redevelopment projects with
the N.C. Division of Archives and History, to ensure that any significant architectural details
or buildings are identified and preserved.
(2) Jacksonville will coordinate all county public works projects with the N.C. Division of
Archives and History, to ensure the identification and preservation of significant
archaeological sites.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
Industrial Impacts on Fragile Areas
POLICIES:
(a) Currently, no industrial uses appear to have direct impact on noted fragile areas. As for
the future, industrial uses which meet the minimum use standards of 15A NCAC 7H, the
City of Jacksonville Zoning Ordinance, and the policies contained in this plan shall be
allowed in fragile areas. The section of this report entitled Types and Locations of Desired
Industry contains specific policy statements on industry for Jacksonville.
(b) Industrial development should be concentrated in industrial park areas.
IMPLEMENTATION.
(1) The City of Jacksonville, in cooperation with Onslow County, will continue to support an
active industrial recruitment program, seeking low pollution industries.
(2) The City of Jacksonville will work with the U.S. Army Corps of Engineers to coordinate local
approval of industrial projects with the 404 permitting process.
(3) The City of Jacksonville will rely on its zoning ordinance to concentrate industrial
development in industrial park areas.
SCHEDULE (1) - (3): Continuing Activities, FY1997-2007
19

Miscellaneous Resource Protection
Package Treatment Plant Use
POLICIES:
(a) The City of Jacksonville does not support the use of private package sewage treatment
plants within the city limits. However, in the ETJ, in special cases where the use of private
systems is the only available option, the city may permit the use of private systems only
if the associated development meets the following criteria:
• The said development is consistent with the city's policies and ordinances.
• The system meets or exceeds the state and federal permitting
requirements.
• The project will have no adverse impacts beyond its boundaries.
• The perpetual operation and maintenance of the system is guaranteed
without obligation to the city in any way.
• If possible, the system will be a land application system.
(b) The city supports requirement of a specific contingency plan specifying how ongoing
private operation and maintenance of the plant will be provided, and detailing provisions
for assumption of the plant into a public system should the private operation fail or
management of the system not meet the conditions of the state permit.
(c) The city supports the discharge of package treatment plant effluent into constructed
wetland areas if construction of a land application system is not possible.
IMPLEMENTATION. The City of Jacksonville will rely upon the North Carolina Division of Water
- Quality and the city's staff to implement this policy.
SCHEDULE: Continuing Activity, FY1997-2007.
Marina and Floating Home Development
POLICIES:
I
(a) The development of open water marinas has significant commercial and recreational
potential in Jacksonville. There are still substantial amounts of vacant, undeveloped
and/or redevelopable lands along portions of the New River. Therefore, the city supports
the development of marinas in compliance with existing environmental regulations.
Jacksonville recognizes the need and use of marinas as both an important recreation
support resource and as an economic development resource. At the same time, as
discussed above, the city does not wish to see unnecessary degradation of its waters.
Therefore, the city will encourage the development of upland marinas where feasible, but
not to the total exclusion of open water marinas. All marinas, regardless of location, must
comply with applicable local, state 15A NCAC 7H, and federal regulations.
(b) The City of Jacksonville opposes the location of floating homes and structures within its
jurisdiction. Floating homes, or any long-term occupancy, is not visualized as being a
desirable use of any future marinas in Jacksonville. Even for temporary occupancy, the
city will require strict adherence to Health Department regulations for pump -out facilities
and proper trash disposal.
20

(c) Jacksonville recognizes the potential environmental benefits of developing marinas and
boat basins in upland locations, and the city will support such development where feasible
and in certain circumstances. However, upland excavated sites should not be permitted
to the complete exclusion of waterfront basins and marinas. The city will generally accept
the state's regulatory standards.
(d) The City of Jacksonville will permit drystacking facilities which comply with 15A NCAC 7H,
the city's local ordinances, and the policies contained within this plan.
IMPLEMENTATION.
(1) The City of Jacksonville will consider adoption of a local ordinance to regulate floating
homes.
(2) The city will rely on its zoning ordinance and 15A NCAC 7H to control the location of open
water marinas, upland marinas, and dry stack storage facilities. The city will consider
amending its zoning ordinance to address floating homes and structures.
SCHEDULE (1) - (2): FY1998-2003.
Mooring Fields
POLICY: The City of Jacksonville will allow mooring fields within marinas.
IMPLEMENTATION: The City of Jacksonville will rely on 15A NCAC 7H to regulate the
development of mooring fields within its planning jurisdiction.
SCHEDULE: Continuing Activity, FY1997-2007.
Development of Sound and Estuarine Islands
POLICY. • There are only two estuarine islands located within Jacksonville's jurisdiction, one in the
vicinity of the Georgetown community and one near Fisherman's Wharf. In all likelihood, these
small islands are environmentally sensitive. It is the city's overall policy to prohibit the
development of AEC's on these islands during this planning period.
IMPLEMENTATION: The City of Jacksonville will rely on NCAC 7H to regulate development of its
Sound and Estuarine Islands and may consider the purchase of these areas to be preserved as
conservation areas should the opportunity present itself. The city does not currently zone the New
River and its estuarine islands.
SCHEDULE. Continuing Activity, FY1997-2007.
Bulkhead Construction
POLICY: Jacksonville supports the construction of bulkheads.
IMPLEMENTATION: The City of Jacksonville will rely on 15A NCAC 7H to regulate the
development of bulkheads within its planning jurisdiction.
SCHEDULE. Continuing Activity, FY1997-2007.
21

Sea Level Rise
Jacksonville believes that this issue is not "solid" enough to propose realistic policy statements at
this time, since it is one still being debated in scientific circles.
Water Quality Management
POLICY: The City of Jacksonville supports the North Carolina Division of Water Quality
Management's goals for water quality management as stated on page 1-54 of this plan.
IMPLEMENTATION.
(1) The city supports adoption of a water quality management ordinance by Onslow County.
(2) The City of Jacksonville will continue to monitor all local land use regulation ordinances to
determine if revisions should be undertaken to respond to specific water quality
management problems.
(3) The city supports state and local actions intended to improve water quality within the White
Oak watershed and the New River.
(4) The city supports preservation of the natural heritage priority areas located along the New
River and its tributaries.
SCHEDULE (1) - (4): Continuing Activities, FY1997-2007.
C. RESOURCE PRODUCTION AND MANAGEMENT POLICIES
Community Attitude Toward Resource Production and Management
The City of Jacksonville will implement policies which support resource production and
management. The city will continue to support balanced development of the civilian and military
sectors of the economy. These sectors are viewed as being mutually supportive. All policies will
meet or exceed 15A NCAC 7H minimum use standards. Resource production should not be
allowed to adversely affect Jacksonville's conservation areas. The hardwood swamps along the
New River should be preserved.
Jacksonville, in cooperation with Onslow County, will pursue the attraction of industries which will
have minimal adverse environmental impact. Industrial development will be encouraged to locate
in industrial parks. In addition, Jacksonville will strive to increase its role in, and benefit from,
Onslow County's tourist industry.
Recreation Resources
(a) Jacksonville will continue to encourage and support the development and/or expansion of
parks and recreational facilities in appropriately sited locations, consistent with the city's
other development policies.
(b) The city recognizes that certain lands along creek and stream beds and other water
courses offer, in many cases, an untapped resource as passive recreational land.
Therefore, the city will encourage and support the development of a Greenways and Trails
system.
22

(c) The city will also continue to support the preservation of the 55-acre Onslow Pines Park,
which is owned and managed by the county but located in the city's southwest
extraterritorial jurisdiction. This multi -use facility is recognized as a valuable outdoor
recreation land area which should not be encroached by incompatible development.
(d) Subject to available funds, the City of Jacksonville supports a comprehensive recreational
program to provide a broad range of recreational facilities for its citizens.
(e) Jacksonville considers coastal wetland areas to be valuable passive recreation areas.
These areas should be protected in their natural state. Only uses which are permitted by
15A NCAC 7H will be allowed.
IlNVU4147P"_ 11 A
(1) The city will continually seek to expand passive park and recreational lands, especially
through the recently appointed (1991) Trails and Greenways Commission.
(2) The city will seek donations of land, bargain sales, or grant funds in order to obtain sites
suitable for development as recreational facilities.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
(3) The city supports the implementation of the recommendations included in its
Comprehensive Recreation and Shoreline Access Plan completed in April, 1998.
SCHEDULE (3): FY1997-2007.
Productive Agricultural Lands
POLICY. The City of Jacksonville supports the responsible use of its productive agricultural lands.
IMPLEMENTATION: The City of Jacksonville supports and encourages use of the U.S. Soil
Conservation Service "Best Management Practices" program.
SCHEDULE: Continuing Activity, FY1997-2007.
Productive Forestlands
POLICY: The City of Jacksonville supports the responsible use of productive forestlands.
IMPLEMENTATION: The City of Jacksonville supports promotion of public awareness of forestry
Best Management Practices in the area, while encouraging the private forestry industry to
implement such practices to the benefit of their natural resource production activities.
SCHEDULE: Continuing Activity, FY1997-2007.
Aouaculture
Aquaculture is considered the cultivation of aquatic plants and animals under controlled
conditions. The following policies shall apply.
23

POLICIES:
(a) Jacksonville encourages all aquaculture activities which meet applicable federal, state, and
local policies (see Aquaculture policies b) and c) and permit requirements. However, the
city reserves the right to comment on all aquaculture activities which require Division of
Water Quality permitting.
(b) The city objects to any discharge of water from aquaculture activities that will degrade in
any way the receiving waters. Jacksonville objects to withdrawing water from aquifers or
surface sources if such withdrawal will endanger water quality or water supply from the
aquifers or surface sources.
(c) The City of Jacksonville will support only aquaculture activities which do not alter
significantly and negatively the natural environment of conservation areas as shown on the
Land Classification Map.
IMPLEMENTATION. Jacksonville will rely on the appropriate state and federal agencies to
implement its aquaculture policies.
SCHEDULE: Continuing Activities, FY1997-2007.
Off -Road Vehicles
POLICY.- The City of Jacksonville opposes the use of off -road vehicles in AECs.
IMPLEMENTATION: The City of Jacksonville will consider adopting a local ordinance to regulate
such usage.
SCHEDULE: FY1999-2003.
Marine Resource Areas
POLICIES:
(a) The City of Jacksonville supports responsible usage and development in marine resource
areas.
(b) The city opposes the construction of any signs, except public regulatory signs, in public
trust areas.
IMPLEMENTATION:
(1) Jacksonville supports the use standards for public trust areas as specified in 15A NCAC
71-1.0207.
(2) Jacksonville reserves the right to comment on the individual policies and requirements of
the North Carolina Division of Marine Fisheries.
(3) The city will support enforcement of current state, federal, and local regulations to improve
water quality.
SCHEDULE (1) - (3): Continuing Activities, FY1997-2007.
24

Peat or Phosphate Mining
There are no significant peat or phosphate deposits located within Jacksonville's planning
jurisdiction. A policy statement is not required.
Residential. Commercial. and Industrial Development Impacts on Resources
POLICIES:
(a) Residential, commercial, and industrial development which is consistent with local zoning,
the policies contained in this plan, and meets applicable state and federal regulations will
be allowed in conservation areas.
(b) Generally, the city believes that development should only take place when and where
adequate urban services are available to support that development.
IMPLEMENTATION. The city will rely on 15A NCAC 7H, and its subdivision and zoning ordinances
to regulate development within areas of environmental concern. In all other areas, development
will be allowed which is consistent with the city's subdivision and zoning ordinances.
SCHEDULE. Continuing Activity, FY1997-2007.
D. ECONOMIC AND COMMUNITY DEVELOPMENT
Community Attitude on Economic and Community Development
The City of Jacksonville has enjoyed a long history of steady, stable growth in terms of population
and in land area. Jacksonville's population has increasingly accounted for a larger share of
Onslow County's overall population. This fact will become more significant in the future, since in
1990 the city annexed a portion of the Camp Lejeune Marine Base population. Camp Lejeune has
also experienced steady growth.
Jacksonville has also witnessed substantial growth in its overall economy, including employment,
earnings, retail sales, tourism expenditures, and real property valuations.
In general, Jacksonville, is a growing urbanized coastal city, is proud of its economic and
community development growth and its association with the military. Therefore, the city favors
continued growth and development in a manner which reflects a sense of responsibility toward the
natural environment and all of its special and valued resources.
Water Supply
POLICIES:
(a) The City of Jacksonville supports the following priorities for improvements to its water
supply system:
-- Improvements necessary to provide optimal fire protection throughout the
distribution system.
-- The city supports construction of additional water supply as needed.
25

(b) It is the policy of the City of Jacksonville to continue to provide water services to newly
developing areas within the city limits, according to adopted extension policies. (The city's
extension policies have been included as Appendix IV of the complete Land Use Plan).
(c) The city will extend water services beyond its extraterritorial area if an adequate demand
for service exists.
(d) The City of Jacksonville supports the construction of waterlines to and through
conservation areas to serve development which meets all applicable local, state, and
federal regulations.
IMPLEMENTATION:
(1) By local ordinance, the city requires that all existing and new residential and commercial
development be connected to both the city water and sewer systems.
(2) Jacksonville is aware that inappropriate land uses near well fields increase the possibility
of well contamination. Land uses near groundwater sources are regulated by the North
+ Carolina Division of Water Quality through NCAC Subchapters 2L and 2C. Jacksonville
recognizes the importance of protecting potable water supplies, and therefore, supports
the enforcement of these regulations by the State of North Carolina.
(3) Jacksonville supports all efforts to secure available state and federal funding for the
construction and/or expansion of public and private water systems.
SCHEDULE (1) - (3): Continuing Activities, FY1997-2007.
Sewer System
POLICIES:
(a) It is the policy of the City of Jacksonville to provide sewer service to newly developing
areas within the city limits, according to adopted extension policies. (The city's extension
policies have been included as Appendix IV of the complete Land Use Plan).
(b) Jacksonville will support the development of central sewer service throughout its
incorporated area and its unincorporated planning jurisdiction.
(c) Jacksonville allows the discharge of effluent into unconstructed wetland areas.
(d) The city supports rehabilitation of older sections of wastewater collection lines as needed.
(e) Jacksonville supports construction of sewer lines through conservation areas to serve
development which meets all applicable local, state, and federal regulations.
IMPLEMENTATION:
(1) The city subdivision ordinance requires all subdivisions within its corporate limits to have
city sewer service.
26

(2) The city supports all efforts to secure available state and federal funding for the
construction and/or expansion of public and private sewer systems.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
Solid Waste
POLICIES:
(a) Jacksonville favors the siting of recycling centers, transfer stations, and solid waste
collection sites within all land classifications, exceptthose within the conservation category,
when the facility(ies) is(are) consistent with the city's zoning ordinance.
(b) The City of Jacksonville supports a county -wide approach to solid waste disposal.
(c) The City of Jacksonville supports efforts to recycle and reduce waste.
IMPLEMENTATION:
(1) The City of Jacksonville will continue to support the operation of the new Pony Farm Road
landfill.
(2) The city will cooperate with any efforts to educate people and businesses on waste
reduction and recycling. The city supports recycling by the county and other users of the
landfill and supports setting up practical collection methods and education efforts to
achieve a high degree of county -wide recycling.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
Stormwater
POLICIES:
(a) The City of Jacksonville will support projects and local land use development controls to
eliminate stormwater drainage problems throughout its planning jurisdiction, especially in
those areas discussed in Section I, Part G, 3. Storm Drainage, page 1-57 of the complete
Land Use Plan.
(b) The city will support mitigation of negative impacts of stormwater runoff on all conservation
classified areas.
(c) Jacksonville supports the policy that all North Carolina Department of Transportation
projects should be designed to limit to the extent possible stormwater runoff into
estuarine/public trust waters.
IMPLEMENTATION.
(1) The City of Jacksonville will cooperate with the NCDOT, the North Carolina Division of
Water Quality, and other state agencies in mitigating the impact of stormwater runoff on
all conservation classified areas. The city will support the Division of Water Quality
stormwater runoff retention permitting process through its zoning permit system.
27

(2) The city will attempt to apply for grant funds to improve stormwater drainage systems
associated with existing rights -of -way.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
(3) The city will develop a comprehensive master drainage plan.
SCHEDULE (3): FY1997-2002.
Miscellaneous Services
POLICY: The city will, as a matter of policy, seek to provide other basic support services for new
development, such as police, fire, solid waste collection, etc.
IMPLEMENTATION:
(1) The city supports the Operation Onslow Strategic Plan which serves as the joint
Jacksonville/Onslow County strategic plan.
(2) The City of Jacksonville will apply for available state and federal grant funds which will aid
the provision of basic support services for new development.
SCHEDULE (1) - (2): Continuing Activities.
(3) Jacksonville will develop a community services/facilities plan (as a stand-alone document,
not as an expansion of this plan) which will define existing deficiencies in police protection,
fire protection, local administrative buildings, public recreational facilities, public shoreline
access, and public parks. This plan will not address school system needs. The plan will
prioritize needs and make specific recommendations concerning financing and budgeting
the high priority needs.
SCHEDULE (3): FY2000-2002.
Energy Facility Siting and Develooment
POLICY: Jacksonville supports responsible and environmentally safe development of public and
private energy production and distribution facilities.
IMPLEMENTATION:
(1) There are no electric generating plants located in Jacksonville's planning jurisdiction. The
city will consider the need for establishing energy facilities on a case -by -case basis,
judging the need for development against all identified possible adverse impacts.
(2) Currently, the City of Jacksonville does not host any electric generating plants, oil
refineries, or inshore exploration facilities for gas or oil. Neither does the city anticipate the
development of any of these facilities within this planning period. However, should any
proposals for such energy facilities be presented, they will be reviewed on a case -by -case
basis.
28

-- The City of Jacksonville will not support the development of any "heavy" industrial
use, including energy facilities, which could cause extensive or irreversible damage
to existing fragile or environmentally sensitive areas.
The city also opposes the development of energy facilities which would
substantially increase the amount of manmade hazards within its jurisdiction,
including offshore drilling.
SCHEDULE (1) - (2): Continuing Activities, FY1997-2007.
Redevelopment of Developed Areas
The most important redevelopment issue confronting the City of Jacksonville may be
reconstruction following a hurricane or other natural disaster. An additional redevelopment
problem is the preservation of housing. The city will enforce its minimum housing code to ensure
that minimum housing standards are met. Residential revitalization projects will be pursued where
substandard housing exists. State and federal housing rehabilitation grants will be sought. The
city will continue to place emphasis on the redevelopment of its downtown.
POLICIES:
(a) Jacksonville supports redevelopment of substandard deteriorated areas of the city
including both residential and commercial areas.
(b) Following a hurricane or other natural disaster, Jacksonville supports redevelopment which
complies with applicable federal, state, and local policies.
IMPLEMENTATION:
(1) The city will be pro -active in pursuing state and federal assistance and other methods of
funding to be utilized for revitalization and other improvements as deemed appropriate.
(2) Jacksonville is committed to supporting ongoing community revitalization efforts to further
refine existing land use controls and other current development regulations, such as
zoning, subdivision regulations, and flood damage protection.
(3) The City of Jacksonville supports actions by Bettering Our Local Downtown (BOLD) to
improve/rehabilitate the Jacksonville Central Business District.
(4) Promote funding for downtown revitalization and implementation projects in an effort to
attract new development to the Central Business District.
(5) The city may apply for Community Development Block Grant Community
Revitalization/Housing Development and North Carolina Housing Finance Agency funds.
SCHEDULE (1) - (5): Continuing Activities, FY1997-2007.
Estuarine Access
POLICY. • The City of Jacksonville supports continued development of shoreline access facilities.
O

IMPLEMENTATION: The City of Jacksonville supports the state's shoreline access policies as
set forth in NCAC Chapter 15A, Subchapter 7M. The city will conform to CAMA and other state
and federal environmental regulations affecting the development of estuarine access areas. The
city will support the implementation of the recommendations included in its Comprehensive
Recreation and Shoreline Access Plan during the five-year planning period.
SCHEDULE: Continuing Activity.
Type of Urban Growth Patterns Desired
POLICY.- For the most part, the City of Jacksonville's current Zoning Ordinance and Map reflect
the city's ultimate desired development pattern. There are a few exceptions, however, with regard
to current allowable densities along the waterfront and in other environmentally sensitive and/or
potentially fragile areas. With the exception of these areas, which may need additional protection
either through zoning or other locally owned measures, the city would generally like to see the
varied mix of urban uses; i.e., for residential, commercial, institutional, or industrial purposes,
follow existing zoning.
IMPLEMENTATION:
(1) The City of Jacksonville will encompass and support a mix of urban uses, with variable
densities, according to suitable provision of basic and community support services, and
adequate transportation access.
(2) For efficient and economical provision of basic and community support services,
Jacksonville will encourage development in or near existing urban clusters. However,
within the current ETJ, low density, mixed transitional uses with adequate thoroughfare
access and basic services, should be encouraged.
(3) The City of Jacksonville supports mitigation actions to reduce/control the adverse effects
-- of strip commercialization. Such actions may include, but are not necessarily limited to
requiring:
- Properties/land uses sharing joint access.
-- Careful traffic signal coordination.
Non-public right-of-way connects between parking lots serving adjacent land uses.
-- Planned thoroughfare crossovers.
- Construction of service roads paralleling major and minor thoroughfares.
SCHEDULE (1) - (3): Continuing Activities, FY1997-2007.
Types and Locations of Desired Industry
POLICY. • The city desires to achieve responsible industrial development which will not adversely
affect the natural environment or the quality of established residential areas.
-- IMPLEMENTATION:
The following industrial development policies will be enforced through the city's zoning ordinance.
(1) Industrial sites should be accessible to municipal/central water and sewer services.
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(2) Industries which are noxious by reason of the emission of smoke, odor, dust, glare, noise,
and vibrations, and those which deal primarily in hazardous products such as explosives,
should not be located in Jacksonville's planning jurisdiction.
(3) Industrial development and/or industrial zoning should not infringe on established
residential development.
(4) Industrial sites should be concentrated in industrial parks within the city's planning
jurisdiction.
(5) Industries having minimal adverse environmental impact will be sought by the city.
It is the policy of the City of Jacksonville to continue to work cooperatively with the Onslow
Economic Development Commission and the Jacksonville-Onslow Chamber of Commerce to
attract new industries to the area.
Jacksonville would prefer to see industries developed which would be neither excessive
consumers of water resources or cause excessive discharge into its streams. In other words,
relatively "dry," low pollution, light manufacturing and/or assembly industries would be preferable.
The preferred location would be in the existing Jacksonville Industrial Park or other suitable sites
in accordance with the city's Zoning Ordinance. The city, in conjunction with the county, would
like to develop an additional industrial park or parks, according to the following standards:
(6) Be located on land having stable, well drained soils. The sites should be located in areas
adequately protected from flooding and be accessible to existing public utilities and
transportation routes.
Jacksonville, along with the county, will provide, as much as is locationally and economically
feasible, basic support services such as water and sewer to newly locating industries.
SCHEDULE (1) - (6): Continuing Activities, FY1997-2007.
Commitment to State and Federal Programs
POLICY: Jacksonville is receptive to state and federal programs, particularly those which provide
improvements to the city.
IMPLEMENTATION: The city will continue to fully support the following state and federal agencies
and programs: North Carolina Department of Transportation road and bridge improvement
programs; USDA Soil Conservation Service; FEMA; federal and state projects which provide
efficient and safe boat access for sport fishing; community development block grants, housing for
the elderly, low -to -moderate income housing, housing rehabilitation, programs which help remove
impediments to the handicapped; North Carolina Housing Finance Agency housing improvement
programs; DOT funding, shoreline access funding, and any funding programs which will aid with
community facilities development. Of special importance to Jacksonville is continued support of
the military.
SCHEDULE: Continuing Activity, FY1997-2007.
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Affordable Housing
POLICY. The City of Jacksonville supports the provision of affordable housing to its residents.
IMPLEMENTATION: The City of Jacksonville will implement the following to aid in providing
affordable housing.
(1) Support low- to moderate -income housing.
(2) Apply for Community Development Block Grant Community Revitalization and North
Carolina Housing Finance Agency funds.
(3) Pursue state and federal funding of projects to improve and increase moderate income
housing.
(4) Support state and federal programs which assist with housing rehabilitation.
(5) When economically feasible, the City of Jacksonville will extend water and sewer lines to
serve new residential developments.
SCHEDULE (1) - (5): Continuing Activities, FY1997-2007.
Assistance in Channel Maintenance
POLICY: The city supports state and federal efforts to maintain channels for navigation. The city
also supports the private maintenance of channels providing that such action is in accordance with
all local, state, and federal environmental regulations.
IMPLEMENTATION: Jacksonville will consider on a case -by -case basis the provision of assistance
to the U.S. Army Corps of Engineers and/or state officials to obtain spoil sites, provide financial
aid, and assist in serving or providing easements for work.
SCHEDULE: Continuing Activity.
Assistance in Interstate Waterways
POLICY., The City of Jacksonville is not adjacent to or directly affected by the Intracoastal
Waterway. However, the city supports continued maintenance of the waterway.
IMPLEMENTATION: None required.
Tourism
POLICY: Jacksonville views tourism as a contributor to the local economy and supports continued
development of the tourist industry.
IMPLEMENTATION: The City of Jacksonville will implement the following policies to further the
development of tourism.
(1) Jacksonville generally supports the development and expansion of travel and tourism
facilities as part of its move toward economic diversification. However, all such facilities
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must be consistent with policies on Resource Protection and Resource Production and
Management.
(2) Jacksonville will support North Carolina Department of Transportation projects to improve
access to the city.
(3) The city will support projects that will increase public access to shoreline areas.
(4) Jacksonville will continue to support the activities of the North Carolina Division of Travel
and Tourism; specifically, the monitoring of tourism -related industry, efforts to promote
tourism -related commercial activity, and efforts to enhance and provide shoreline
resources.
(5) Jacksonville will support designation and preservation of historic district areas.
SCHEDULE (1) - (5): Continuing Activities, FY1997-2007.
Transportation
POLICY: The City of Jacksonville supports transportation improvements which will improve
highway safety, regional accessibility, and traffic flow within the city's planning jurisdiction.
IMPLEMENTATION. The City of Jacksonville supports the following transportation projects/
improvements.
-- U.S. 17 Freeway.
U.S. 17 Relocation.
Doris Avenue widening to three lanes between Henderson Drive and Northwoods Drive.
-- Brynn Marr/Pine Valley Road widening to three lanes.
-- Tarawa Boulevard widening to three lanes.
-- New River Drive widening to three lanes between Onslow Drive and NC 24.
Henderson Drive (SR 1336) Extension between Western Boulevard and Ramsey Road.
- Extensions between Thomas Humphrey Road and Waters Road.
Maplehurst Road (SR 1130) Extension between NC 53 and U.S. 258.
-- Corbin/Hemlock/Halltown Road Corridor.
Extensions between Rocky Run Road and Piney Green Road.
- Piney Green Road (SR 1406) Extension between U.S. 17 and Ramsey Road.
- Country Club Road (SR 1403) widening to four lanes between Bell Fork Road and Piney
Green Road.
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Stone Street widening to four lanes between Brewster Boulevard and Seth Williams
Boulevard.
Brewster Boulevard widening to four and five lanes between Holcomb Boulevard and Seth
Williams Boulevard.
-- Curtis Road widening to four lanes between U.S. 17 and the New River Air Station.
Western Boulevard (SR 1470) widening to four lanes between U.S. 17 and Gum Branch
Road.
Gum Branch Road (SR 1403) widening to seven lanes between U.S. 17 and Oak Street.
-- Piney Green Road (SR 1406) widening to five lanes between U.S. 17 and NC 24.
- NC 53 widening to four and five lanes between U.S. 17 and southern planning area
boundary.
Henderson Drive widening to five lanes between U.S. 17 and Barn Street.
-- Holcomb Boulevard widening to eight lanes.
Northwest Loop.
Piney Green Road (SR 1406) Extension between NC 24 and Sneads Ferry Road.
NC 24 widening between the US 17 Freeway and Holcomb Boulevard.
- White Street Extension to Country Club Road.
-- Montford Point Road widening to four lanes between NC 24 and Harlem Drive.
Bell Fork Road (SR 1308) widening to five lanes between U.S. 17 and NC 24.
- Henderson Drive (SR 1356) widening to five lanes between Gum Branch Road and
Western Boulevard.
U.S. 258/NC 24 widening to seven lanes between the Maplehurst Road Extension and the
U.S. 17 Freeway.
-- Fawn Trail Extension.
Country Club Road (SR 1403) Extension to Thomas Humphrey Road.
NC 24 Access Road.
Extension between Fawn Trail Extension and Gum Branch Road.
-- Limiting additional points of ingress and egress on Marine, Lejeune, and Western
Boulevards.
- Implementation of the NCDOT Transportation Improvement Plan.
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Improve pedestrian access and foster pedestrian -friendly environment.
- Coordinate with NCDOT to ensure that city streets are adequately maintained and
upgraded.
SCHEDULE: Continuing Activities, FY1997-2007.
Land Use Trends
The policies contained in this section have addressed the following key land use issues/problems:
- The majority of residential development within the planning period is expected to occur
outside the Jacksonville city limits along Piney Green Road and U.S. 17.
Commercial development will continue to be heavily dependent on military personnel.
-- Commercial revitalization will have a positive impact on the city.
Congestion on Marine (U.S. 17), Lejeune (N.C. 24), and Western Boulevards will hinder
access to commercial establishments.
New commercial development is expected to be concentrated on Marine Boulevard (U.S.
17) and Western Boulevard, including the Western Boulevard Extension.
-- The city will emphasize development of an additional industrial park and will strive to
diversify its industrial base.
Development of Jacksonville Commons will continue to be a major public land use need.
In addition to the city policies provided in this Executive Summary, the 1996 Land Use Plan
includes Continuing Public Participation and Storm Hazard Mitigation and Evacuation Plans
sections. A complete copy of the 1996 Land Use Plan, including the Continuing Public
Participation section and the Storm Hazard Mitigation and Evacuation Plans section, is on file at
the Jacksonville City Hall and are available to the public.
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